Commemorations in Congress: Options for Honoring Individuals, Groups, and Events

Changes from April 22, 2015 to July 23, 2015

This page shows textual changes in the document between the two versions indicated in the dates above. Textual matter removed in the later version is indicated with red strikethrough and textual matter added in the later version is indicated with blue.

Commemorations in Congress: Options for
Honoring Individuals, Groups, and Events
Jacob R. Straus, Coordinator
Analyst on the Congress
Michelle D. Christensen
Analyst in Government Organization and Management
Craig K. Elwell
Specialist in Macroeconomic Policy
Matthew E. Glassman
Analyst on the Congress
Garrett Hatch
Specialist in American National Government
Valerie Heitshusen
Analyst on Congress and the Legislative Process
April 22, 2015
Congressional Research Service
7-5700
www.crs.gov
R43539
Commemorations in Congress: Options for Honoring Individuals, Groups, and Events
Summary
Since its inception, Congress has used commemorative legislation to express public gratitude for
distinguished contributions; dramatize the virtues of individuals, groups, and causes; and
perpetuate the remembrance of significant events. During the past two centuries,
commemoratives have become an integral part of the American political tradition. They have
been used to authorize the minting of commemorative coins and Congressional Gold Medals;
fund monuments and memorials; create federal holidays; establish commissions to celebrate
important anniversaries; and name public works, scholarships, endowments, fellowships, and
historic sites.
Current congressional practice for commemoratives includes a House Rule (Rule XII, clause 5,
initially adopted during the 104th Congress (1995-1996)) that precludes the introduction or
consideration of legislation that commemorates “any remembrance, celebration, or recognition
for any purpose through the designation of a special period of time.” Such a rule does not exist in
the Senate. This change to House Rules, together with the passage of more restrictive laws, rules,
and procedures governing the enactment of several other types of commemoratives, has
substantially reduced the time Congress spends considering and adopting such measures.
This report summarizes the evolution of commemorative legislation as well as the laws, rules, and
procedures that have been adopted to control the types of commemoratives considered and
enacted. Included in the discussion of commemorative options for Congress are those that require
legislation, such as
•
naming federal buildings, including post offices and other federal structures;
•
postage stamps;
•
commemorative coins;
•
Congressional Gold Medals;
•
monuments and memorials, both in the District of Columbia and elsewhere;
•
commemorative commissions;
•
commemorative observances;
•
federal holidays; and
•
requesting presidential proclamations.
Also included are commemorative options that do not require legislation. These include
•
certificates of recognition;
•
floor speeches; and
•
flags flown over the U.S. Capitol.
Congressional Research Service
Commemorations in Congress: Options for Honoring Individuals, Groups, and Events
Contents
Introduction...................................................................................................................................... 1
Efforts to Curb Commemoratives.............................................................................................. 1
Advisory Commission ............................................................................................................... 1
House Ban on Commemorative Legislation .............................................................................. 2
House Rule XII, Clause 5 .................................................................................................... 2
House Republican Conference Rule 28............................................................................... 3
Past Waiver of House Rule XII ........................................................................................... 4
Overview of Options Discussed ................................................................................................ 4
Legislative Options .......................................................................................................................... 4
Naming Federal Buildings ......................................................................................................... 5
Post Offices ......................................................................................................................... 5
Other Federal Buildings ...................................................................................................... 6
Postage Stamps .......................................................................................................................... 8
Commemorative Coins .............................................................................................................. 8
Advisory Coin Committee .................................................................................................. 9
1993 Sense of the Congress Resolution .............................................................................. 9
1996 Statutory Restrictions ................................................................................................. 9
Abolition of the Citizens Commemorative Coin Advisory Committee (CCCAC) ........... 10
Committee Rules/Practice ................................................................................................. 10
Outside Advice Sought by Committees............................................................................. 11
Congressional Gold Medals .................................................................................................... 11
Monuments and Memorials ..................................................................................................... 12
District of Columbia .......................................................................................................... 12
Non-District of Columbia.................................................................................................. 13
New Commemorative ................................................................................................. 14
Official Recognition of Commemoratives .................................................................. 14
Commemorative Commissions................................................................................................ 15
Commemorative Observances and Days ................................................................................. 16
Federal Holidays ...................................................................................................................... 16
Presidential Proclamations ...................................................................................................... 17
Non-Legislative Options ................................................................................................................ 17
Certificates of Recognition ...................................................................................................... 17
Floor Speeches......................................................................................................................... 18
Flags ........................................................................................................................................ 19
House of Representatives .................................................................................................. 19
Senate ................................................................................................................................ 19
Contacts
Author Contact Information........................................................................................................... 20
Key Policy Staff ............................................................................................................................. 20
Congressional Research Service
Commemorations in Congress: Options for Honoring Individuals, Groups, and Events
Introduction
Since its inception, Congress has used commemoratives to express public gratitude for
distinguished contributions; dramatize the virtues of individuals, groups, and causes; and
perpetuate the remembrance of significant events. The first commemoratives were primarily in
the form of individually struck medals. During the 19th century, Congress gradually broadened the
scope of commemoratives by recommending special days for national observance; funding
monuments and memorials; creating federal holidays; authorizing the minting of commemorative
coins; and establishing commissions to celebrate important anniversaries. In the 20th century, it
became increasingly commonplace for Congress to use commemorative legislation to name
buildings and other public works, scholarships, endowments, fellowships, and historic sites.
This report provides a discussion of commemorative options available to Congress. These
commemorative options are divided into those that require legislation and those that do not. Types
of commemoratives requiring legislative action include naming federal buildings, including post
offices; creating postage stamps; minting commemorative coins; awarding of Congressional Gold
Medals; authorizing monuments and memorials, both in the District of Columbia and on federal
land in other parts of the United States; establishing commemorative commissions; authorizing
commemorative observances and federal holidays; and requesting presidential proclamations.
Non-legislative options include sending certificates of recognition, making floor speeches, and
sending flags flown over the Capitol Building to constituents.
Efforts to Curb Commemoratives
Beginning in the 1960s, several initiatives were undertaken to reduce the number of
commemoratives proposed through legislation. These initiatives were in response to concern that
the legislative time spent on commemorative measures was excessive.1 Efforts to curb
commemoratives can be divided into two categories: creating an advisory commission to
recommend appropriate commemorations and amending congressional rules on the introduction
and consideration of commemorative legislation.
Advisory Commission
Between the 89th Congress (1965-1966) and the 104th Congress (1995-1996), several proposals
were introduced to shift the responsibility of recommending commemorative celebrations to a
presidential commission. First introduced in 1966, the proposed Commission on National
Observances and Holidays would have served to review proposals for national observances and
“report to the President with respect to any proposal for a national observance which, in the
opinion of the Commission, is of national significance.”2 In both the 89th Congress and the 90th
1
Roger H. Davidson, “The New Centralization on Capitol Hill,” The Review of Politics, vol. 50, no. 3 (Summer 2008),
p. 353; and Craig Volden and Alan E. Wiseman, “Breaking Gridlock: The Determinants of Health Policy Change in
Congress,” Journal of Health Politics, Policy and Law, vol. 36, no. 2 (2011), p. 236.
2
“Commission on National Observances and Holidays,” Congressional Record, vol. 112, part 18 (October 3, 1966), p.
24828. The commission would not have been allowed to make recommendations calling for a national observance for
any fraternal, political, or religious organization, or a commercial enterprise or product.
Congressional Research Service
1
Commemorations in Congress: Options for Honoring Individuals, Groups, and Events
Congress (1967-1968),3 measures were passed by the House, but no further action was taken by
the Senate.4
House Ban on Commemorative Legislation
In the 104th Congress (1995-1996), the House adopted a new rule to reduce the number of
commemorative bills and resolutions introduced and considered by the chamber. House Rule XII,
clause 5, prohibits the introduction and consideration of date-specific commemorative legislation.
Additionally, Republican Conference Rule 28 prohibits the Republican leader from scheduling
Honoring Individuals, Groups, and Events

Summary

Since its inception, Congress has used commemorative legislation to express public gratitude for distinguished contributions; dramatize the virtues of individuals, groups, and causes; and perpetuate the remembrance of significant events. During the past two centuries, commemoratives have become an integral part of the American political tradition. They have been used to authorize the minting of commemorative coins and Congressional Gold Medals; fund monuments and memorials; create federal holidays; establish commissions to celebrate important anniversaries; and name public works, scholarships, endowments, fellowships, and historic sites.

Current congressional practice for commemoratives includes a House Rule (Rule XII, clause 5, initially adopted during the 104th Congress (1995-1996)) that precludes the introduction or consideration of legislation that commemorates "any remembrance, celebration, or recognition for any purpose through the designation of a special period of time." Such a rule does not exist in the Senate. This change to House Rules, together with the passage of more restrictive laws, rules, and procedures governing the enactment of several other types of commemoratives, has substantially reduced the time Congress spends considering and adopting such measures.

This report summarizes the evolution of commemorative legislation as well as the laws, rules, and procedures that have been adopted to control the types of commemoratives considered and enacted. Included in the discussion of commemorative options for Congress are those that require legislation, such as

naming federal buildings, including post offices and other federal structures;

postage stamps;

commemorative coins;

Congressional Gold Medals;

monuments and memorials, both in the District of Columbia and elsewhere;

commemorative commissions;

commemorative observances;

federal holidays; and

requesting presidential proclamations.

Also included are commemorative options that do not require legislation. These include

certificates of recognition;

floor speeches; and

flags flown over the U.S. Capitol.

Commemorations in Congress: Options for Honoring Individuals, Groups, and Events

Introduction

Since its inception, Congress has used commemoratives to express public gratitude for distinguished contributions; dramatize the virtues of individuals, groups, and causes; and perpetuate the remembrance of significant events. The first commemoratives were primarily in the form of individually struck medals. During the 19th century, Congress gradually broadened the scope of commemoratives by recommending special days for national observance; funding monuments and memorials; creating federal holidays; authorizing the minting of commemorative coins; and establishing commissions to celebrate important anniversaries. In the 20th century, it became increasingly commonplace for Congress to use commemorative legislation to name buildings and other public works, scholarships, endowments, fellowships, and historic sites.

This report provides a discussion of commemorative options available to Congress. These commemorative options are divided into those that require legislation and those that do not. Types of commemoratives requiring legislative action include naming federal buildings, including post offices; creating postage stamps; minting commemorative coins; awarding of Congressional Gold Medals; authorizing monuments and memorials, both in the District of Columbia and on federal land in other parts of the United States; establishing commemorative commissions; authorizing commemorative observances and federal holidays; and requesting presidential proclamations. Non-legislative options include sending certificates of recognition, making floor speeches, and sending flags flown over the Capitol Building to constituents.

Efforts to Curb Commemoratives

Beginning in the 1960s, several initiatives were undertaken to reduce the number of commemoratives proposed through legislation. These initiatives were in response to concern that the legislative time spent on commemorative measures was excessive.1 Efforts to curb commemoratives can be divided into two categories: creating an advisory commission to recommend appropriate commemorations and amending congressional rules on the introduction and consideration of commemorative legislation.

Advisory Commission

Between the 89th Congress (1965-1966) and the 104th Congress (1995-1996), several proposals were introduced to shift the responsibility of recommending commemorative celebrations to a presidential commission. First introduced in 1966, the proposed Commission on National Observances and Holidays would have served to review proposals for national observances and "report to the President with respect to any proposal for a national observance which, in the opinion of the Commission, is of national significance."2 In both the 89th Congress and the 90th Congress (1967-1968),3 measures were passed by the House, but no further action was taken by the Senate.4

House Ban on Commemorative Legislation
In the 104th Congress (1995-1996), the House adopted a new rule to reduce the number of commemorative bills and resolutions introduced and considered by the chamber. House Rule XII, clause 5, prohibits the introduction and consideration of date-specific commemorative legislation. Additionally, Republican Conference Rule 28 prohibits the Republican leader from scheduling commemorative legislation under suspension of the rules, a practice also addressed in acommittee rule of the House Oversight and Government Reform Committee.5
5
House Rule XII, Clause 5As part of the rules adopted by the 104th Congress,6104th Congress,6 House Rule XII was amended to preclude theintroduction or consideration of any bill, resolution, or amendment that “"establishes or expressesany commemoration.”" The rule, which is still in effect, defines a commemoration as any
“ "remembrance, celebration, or recognition for any purpose through the designation of a specifiedperiod of time.”" Further, in the House Rules Committee’'s section-by-section analysis of theHouse Rules resolution (H.Res. 6, 104th, 104th Congress), the following explanation was provided onthe rule’'s intent:The new ban on date-specific commemorative measures or amendments applies to both theintroduction and consideration of any measure containing such a commemorative. This isintended to include measures in which such a commemorative may only be incidental to theoverall purpose of the measure. Such measures will be returned to the sponsor if they aredropped in the legislative hopper. The prohibition against consideration also extends to anymeasures received from the Senate which contain date-specific commemorative. While itdoes not block their receipt from the other body, it is intended that such measures would notbe referred to the appropriate committee of the House or be considered by the House.Instead, they would simply be held at the desk without further action. Should such acommemorative be included in a conference report or Senate amendment to a House bill, theentire conference report or Senate amendment would be subject to a point of order.While the ban does not apply to commemorative [sic] which do not set aside a specifiedperiod of time, and instead simply call for some form of national recognition, it is not theintent of the rule that such alternative forms should become a new outlet for theconsideration of such measures. Thus, while they could be referred to an appropriate
committee, it is not expected that such committees should feel obligated or pressured to
3
“Commission on National Observances and Holidays,” Congressional Record, vol. 113, part 6 (March 20, 1967), pp.
7258-7263.
4
The proposed commission was introduced in six succeeding Congresses beginning in the 98th Congress (1983-1984).
These proposals were each called the National Commemorative Events Advisory Act and were introduced as H.R.
4571 (98th Congress); H.R. 692, (99th Congress); H.R. 998 (100th Congress); H.R. 539 (101st Congress); S. 1112, H.R.
68, and H.R. 1882 (102nd Congress); H.R. 624 (103rd Congress); and S. 1236 (104th Congress). None of these proposals
was reported out of committee.
5
For more information on suspension of the rules procedures, see CRS Report 98-314, Suspension of the Rules in the
House: Principal Features, by Elizabeth Rybicki.
6
“Ban on Commemoratives,” Congressional Record, daily edition, vol. 141 (January 4, 1995), pp. H29-H30.
Congressional Research Service
2
Commemorations in Congress: Options for Honoring Individuals, Groups, and Events
committee, it is not expected that such committees should feel obligated or pressured to establish special rules for their release to the House floor. Nor should it be expected that theRule [sic] Committee should become the new avenue for regular waivers of the rule againstdate specific commemorative [sic]. Such exceptions should be limited to those rare situationswarranting special national recognition as determined by the Leadership.7
7
House Republican Conference Rule 28In relation to the current operation of House Rule XII, clause 5, the House RepublicanConference adopted a rule (Rule 28 (6)) that prohibits the Republican leader from scheduling
“ "any bill or resolution for consideration under suspension of the Rules which ... expressesappreciation, commends, congratulates, celebrates, recognizes the accomplishments of, orcelebrates the anniversary of, an entity, event, group, individual, institution, team or governmentprogram; or acknowledges or recognizes a period of time for such purposes.... ”8
"8Additionally, the House majority party leadership has issued protocols “"intended to guide themajority leadership in the scheduling and consideration of legislation on the House floor.”
" Included in the protocols is guidance on possible exemptions to Conference Rule 28.A resolution of bereavement, or condemnation, or which calls on others (such as a foreigngovernment) to take a particular action, but which does not otherwise violate the provisionsof Rule 28 is eligible to be scheduled under suspension of the Rules.9
9
Party conference rules and protocols, however, are not enforceable by points of order on theHouse floor, although they may reflect a general reluctance on the part of the majority party toschedule any legislation with commemorative intent.In addition, in the 114th114th Congress, the House Committee on Oversight and Government Reform(which has jurisdiction over holidays and celebrations) adopted a new committee provision. ItsRule 13(c) states,The Chairman shall not request to have scheduled any resolution for consideration undersuspension of the Rules, which expresses appreciation, commends, congratulates, celebrates,recognizes the accomplishments of, or celebrates the anniversary of, an entity, event, group,individual, institution, team or government program; or acknowledges or recognizes a period
of time for such purposes.10
7
“Rules of the House,” Congressional Record, vol. 141, part 1 (January 4, 1995), p. 476.
U.S. Congress, House Republican Conference, “Conference Rules.” Pursuant to Rule 28(b), “a waiver of this rule can
be granted by the majority of the Elected Leadership as defined under [Republican Conference] Rule 2.” The elected
leadership of the Republican Conference is defined in Rule 2(a) of the Conference Rules to include the Speaker of the
House, the Republican Leader, the Republican Whip, the Chair of the Republican Conference, the Chair of the National
Republican Congressional Committee, the Chair of the Committee on Policy, the Vice-Chair of the Republican
Conference, and the Secretary of the Republican Conference. A copy of the House Republican Conference Rules can
be found at http://www.gop.gov/114th-rules/.
9
U.S. Congress, House Committee on Rules, “General Protocols for the 114th Congress,” at http://rules.house.gov/
sites/republicans.rules.house.gov/files/114/PDF/114-Protocols-Post.pdf; and U.S. Congress, House of Representatives,
Office of the Majority Leader, “Floor Protocols,” at http://www.majorityleader.gov/protocols.
10
U.S. Congress, House Committee on Oversight and Government Reform, “Rules of the Committee on Oversight and
Government Reform, U.S. House of Representatives, 114th Congress,” at http://oversight.house.gov/wp-content/
uploads/2015/01/OGR-COMMITTEE-RULES-114-FINAL.pdf#page=11.
8
Congressional Research Service
3
Commemorations in Congress: Options for Honoring Individuals, Groups, and Events
of time for such purposes.10The committee has issued additional guidance that “"in accordance with the intent of this rule, itwill be the policy of the Committee that resolutions deemed to fit these criteria shall not beconsidered by the Committee.”11
"11Past Waiver of House Rule XIISince House Rule XII, clause 5, was adopted in the 104th104th Congress, it has been waived on at leastone occasion. Specifically, the “"House by unanimous consent waived the prohibition againstintroduction of a certain joint resolution specified by sponsor and title proposing acommemoration,”12"12 to allow for the consideration of H.J.Res. 71 (107th (107th Congress, 2001-2002),legislation establishing Patriot Day as a day of remembrance for September 11, 2001.13
13
Overview of Options Discussed
Congress’
Congress's commemorative options fall into two general categories: legislative options and nonlegislativenon-legislative options. All legislative options require passage of a bill or resolution by the House, theSenate, or both chambers, while non-legislative options can be accomplished by individualoffices without legislative approval. Legislative options include naming federal buildings,designing postage stamps, minting commemorative coins, awarding congressional gold medals,creating monuments and memorials, designating commemorative observances, establishingfederal holidays, and requesting presidential proclamations. Non-legislative options includecreating individual office awards, giving floor speeches, sending official letters, and ordering
flags.
Legislative Options
flags.
Legislative Options
Several legislative options exist to honor individuals, groups, and historic events. For each ofthese commemoratives, action requires passage of a bill or resolution by the House, the Senate, orboth chambers. In some cases, House and Senate committees, or the majority party, have specificrules or guidance associated with commemoratives. These include requiring a minimum numberof cosponsors before the bill can be considered by the relevant committee, prohibitions against
commemorating sitting Members of Congress, and some restrictions on commemorating living
persons.
11
U.S. Congress, House, Committee on Oversight and Government Reform, “OGR Committee Policies on Post Office
Namings and Commemorative Resolutions,” Dear Colleague Letter, March 16, 2015.
12
U.S. Congress, House, Constitution, Jefferson’s Manual, and Rules of the House of Representatives of the United
States, One Hundred Thirteenth Congress, prepared by Thomas J. Wickham, parliamentarian, 112th Cong., 2nd sess.,
H.Doc. 112-161 (Washington: GPO, 2013), §823, p. 621.
13
“Authorizing Introduction of Joint Resolution Designating September 11 as United We Stand Remembrance Day,”
Congressional Record, daily edition, vol. 147 (October 24, 2001), p. H.7300; and “Making in Order on Thursday,
October 25, 2001, Consideration of Joint Resolution Designating September 11 as United We Stand Remembrance
Day,” Congressional Record, daily edition, vol. 147 (October 24, 2001), p. H7300.
Congressional Research Service
4
Commemorations in Congress: Options for Honoring Individuals, Groups, and Events
commemorating sitting Members of Congress, and some restrictions on commemorating living persons.
Naming Federal BuildingsIn each Congress, many bills are introduced to name a post office or other federal building inhonor or in memory of locally esteemed individuals, deceased elected officials, fallen militarypersonnel, and celebrities. To name a post office or other federal building after an individual anact of Congress is required. This section details congressional involvement in the naming of postoffices and other federal buildings.
Post Offices
Post Offices
Legislation naming post offices for persons has become a very common practice. In recentCongresses, almost 20% of all statutes enacted were post office naming acts. Legislation hasnamed post offices for a variety of persons, including locally esteemed individuals (e.g.,Reverend Abe Brown),1414 deceased elected officials (e.g., Ronald Reagan),1515 fallen Armed Forcespersonnel (e.g., Army Specialist Matthew Troy Morris),1616 and celebrities (e.g., Bob Hope).17
17
Post office naming statutes commonly identify the address of the postal facility and provide fornaming (“designating”"designating") the facility.1818 Renaming a post office through legislation, however, doesnot result in the new name being etched or painted on the facade of the building or signs. Further,for operational and logistical reasons, a post office that has been dedicated or renamed will keepits original name and geographical designation within USPS’'s addressing system. Instead, tocommemorate the designation, a small plaque noting the designee and designation is installedwithin the post office.Over the years, both the House and Senate have adopted policies and practices for consideringand enacting post office naming bills. These policies and practices, sometimes expressed in “Dear
Colleague”"Dear Colleague" letters or committee rules, have varied from Congress to Congress.1919 Frequently, theHouse Oversight and Government Reform Committee has adopted a policy (though not a formalrule) that a post office naming bill would not be approved until all Members from the state wherethe post office is located have signed on as cosponsors of the bill. Similarly, the Senate HomelandSecurity and Governmental Affairs Committee (HSGAC) adopted practices for considering andreporting post office naming legislation.20 For example, under its current rules, HSGAC
14
P.L. 112-159, 126 Stat. 1270, August 10, 2012.
Several post offices have been named after President Ronald Reagan. They include Dixon, IL (P.L. 111-235, 124
Stat. 2495, August 16, 2010); Billings, MT (P.L. 108-143, 117 Stat. 1877, December 2, 2003), and West Melbourne,
FL (P.L. 107-7, 1159 Stat. 9, April 12, 2001).
16
P.L. 112-107, 126 Stat. 328, May 15, 2012.
17
P.L. 108-120, 117 Stat. 1334, November 11, 2003.
18
Post office naming statutes also include a “references” provision. The practical effect of this provision is that it
informs agencies that they need not amend or replace existing documentation that refers to the designated post office by
another name. Thus, for example, the U.S. Postal Service would not need to change its internal documents to reflect the
post office’s renaming.
19
For example, see U.S. Congress, House Committee on Oversight and Government Reform, “Rules of the Committee
on Oversight and Government Reform, U.S. House of Representatives,” 114th Cong., 1st sess., p. 11, at
http://oversight.house.gov/wp-content/uploads/2015/01/OGR-COMMITTEE-RULES-114-FINAL.pdf.
20
In recent Congresses, the House Oversight and Government Reform Committee and the Senate Homeland Security
and Governmental Affairs Committee have had jurisdiction over post office naming bills.
15
Congressional Research Service
5
Commemorations in Congress: Options for Honoring Individuals, Groups, and Events
20 For example, under its current rules, HSGAC
[will] not consider any legislation that would name a postal facility for a living person withthe exception of bills naming facilities after former Presidents and Vice Presidents of theUnited States, former Members of Congress over 70 years of age, former State or localelected officials over 70 years of age, former judges over 70 years of age, or woundedveterans.21
21
Once post office naming legislation is reported by the House and Senate Committees, thelegislation, if considered on the floor, tends to pass the House under suspension of the rules andthe Senate via unanimous consent.22
22
For more information on naming post offices, including sample legislation, see CRS ReportRS21562, Naming Post Offices Through Legislation, by [author name scrubbed].
, by Michelle D. Christensen.
Other Federal BuildingsBills to name other federal buildings or facilities may be considered and reported in anycommittee, typically in relation to the agencies under each committee’'s jurisdiction. Legislationnaming a veterans medical facility, for example, would normally originate in the Veterans’' Affairs(VA) committees in the House and the Senate. Legislation naming courthouses—which areconstructed and maintained by the General Services Administration (GSA)—is considered by thecommittees with jurisdiction over GSA, the House Transportation and Infrastructure Committee(T&I) and the Senate Environment and Public Works Committee (EPW). Historically, the largemajority of non-postal facilities are named through legislation originating in these fourcommittees: VA and T&I in the House, and VA and EPW in the Senate. Occasionally, legislationis introduced to name buildings held by other agencies, such as National Aeronautical and SpaceAdministration (NASA) training facilities. The principle of jurisdiction applies in these cases aswell: NASA is under the jurisdiction of the Science, Space and Technology Committee in theHouse (SST) and the Commerce, Science, and Transportation Committee in the Senate (STC), sonaming legislation for NASA facilities is considered by these committees.Committees vary as to whether they have specific rules regarding the introduction of naminglegislation. Some have written naming rules. In the 114th114th Congress, for example, the Senate andHouse Veterans’' Affairs committees have identical language in their committee rules that identifyspecific criteria for naming legislation.2323 These rules prohibit naming a VA facility after anindividual unless the individual is deceased and is
•
a veteran who (i) was instrumental in the construction of the facility to be named,
or (ii) was a recipient of the Medal of Honor, or, as determined by the Chairman
21
U.S. Congress, Senate Committee on Homeland Security and Governmental Affairs, “Rules of Procedure of the
Committee on Homeland Security and Governmental Affairs,” 114th Cong., 1st Sess., p. 9 at http://www.gpo.gov/fdsys/
pkg/CPRT-113SPRT79634/pdf/CPRT-113SPRT79634.pdf.
22
For example, see P.L. 112-107, 126 Stat. 328, May 15, 2012.
23
U.S. Congress, House, Committee on Veterans’ Affairs, Rules of the Committee On Veterans’ Affairs, U.S. House of
Representatives, for the 114th Congress, Rule 10, pp. 11-12 at http://veterans.house.gov/sites/
republicans.veterans.house.gov/files/documents/FINAL%20Committee%20Rules%20for%20114th.pdf; and U.S.
Congress, Senate, Committee on Veterans’ Affairs, Rules of the Committee on Veterans’ Affairs for the 114th Congress,
Rule VIII, at “Committee on Veterans’ Affairs Rules of Procedure,” Congressional Record, daily edition, vol. 161
(January 21, 2015), pp. S341-S342, at http://www.gpo.gov/fdsys/pkg/CREC-2015-01-21/pdf/CREC-2015-01-21-pt1PgS341.pdf#page=1.
Congressional Research Service
6
Commemorations in Congress: Options for Honoring Individuals, Groups, and Events
or (ii) was a recipient of the Medal of Honor, or, as determined by the Chairman and Ranking Minority Member, otherwise performed military service of anextraordinarily distinguished character;
•
a Member of the United States House of Representatives or Senate who had adirect association with such facility;
•
an Administrator of Veterans’' Affairs, a Secretary of Veterans’' Affairs, aSecretary of Defense or of a service branch, or a military or other federal civilianofficial of comparable or higher rank; or
•
an individual who, as determined by the Chairman and Ranking MinorityMember, performed outstanding service for veterans.In addition, each Member of the congressional delegation representing the state in which thedesignated facility is located must indicate, in writing, his or her support of the bill. Finally, thepertinent state department or chapter of each congressionally chartered veteran’'s organizationwith a national membership of at least 500,000 must indicate, in writing, its support of the bill.By contrast, the committees with jurisdiction over courthouse naming in the 114th114th Congress—T&I in the House and EPW in the Senate—do not have identical written rules. Currently, T&Idoes not have a formal rule pertaining to naming legislation, although it did have written policiesregarding naming legislation in previous Congresses.2424 While no longer part of the committee’s
's written rules, some or all of these requirements may still be in place—albeit informally—andenforced. Contacting the committee is the only way to determine what informal rules are in place,if any.EPW, on the other hand, has its requirements in committee rules.2525 According to Rule 7(d) thecommittee may not name a building for any living person, except
•
a former President or Vice President of the United States;
•
a former Member of Congress over 70 years of age;
•
a former Supreme Court Justice over 70 years of age;
•
a federal judge who is fully retired and over 75 years of age; or
•
a federal judge who has taken senior status and is over 75 years of age.26
24
U.S. Congress, House Committee on Transportation and Infrastructure, Subcommittee on Public Buildings and
Economic Development, The Naming of Public Buildings, internal committee memorandum dated July 16, 1995. This
memorandum identified criteria for the subcommittee to consider in naming a public building. These criteria were that:
the building must be under the control of the General Services Administration (GSA) or the Architect of the Capitol
(leased buildings are normally not named unless the building is under a lease purchase authority); the building must not
currently be named for an individual; subcommittee consideration does not occur unless the Member in whose district
the building is located sponsors the legislation or otherwise consents to the naming; age requirements are not
applicable; priority is not given to any particular class or occupation of individuals; the subcommittee generally does
not name buildings for sitting Members of Congress; and the person for whom the building is named must have a
“good reputation.”
25
U.S. Congress, Senate Committee on Environment and Public Works, Rules of the Committee on Environment and
Public Works, United States Senate, and Standing Rules of the Senate Relative to the Activities of Committees, 114th
Congress, Rule 7(d), at http://www.epw.senate.gov/public/index.cfm?FuseAction=
CommitteeResources.CommitteeRules.
26
Ibid.
Congressional Research Service
7
Commemorations in Congress: Options for Honoring Individuals, Groups, and Events

a federal judge who has taken senior status and is over 75 years of age.26

As with T&I, neither SST in the House nor STC in the Senate have written rules pertaining tonaming legislation.
Postage Stamps
Postage Stamps
Each year, the U.S. Postal Service (USPS) issues commemorative stamps to celebrate persons,anniversaries, and historical and cultural phenomena. For example, USPS has issued stamps forformer Representative Shirley Chisholm, the Year of the Horse, and Harry Potter.2727 The USPSissues these stamps at its own statutory discretion and operates the program as a profit-makingenterprise.28
28
Legislation to direct USPS to issue a stamp to commemorate persons, historical occurrences, andgroups is occasionally introduced. CRS has been unable to identify any instances of suchlegislation being enacted into law. On selected occasions, however, Congress has enactedlegislation directing USPS to issue a semipostal stamp, which is a stamp sold at a premium toraise funds for a particular cause. For example, the Save the Vanishing Species Semipostal Stampwas created pursuant to H.R. 1454, , Multinational Species Conservation Funds Semipostal StampAct of 2010.29
.29The House committee of jurisdiction (Committee on Oversight and Government Reform) has arule against considering legislation that proposes the issuance of commemorative stamps.Committee Rule 13 states, in part, “"[t]he determination of the subject matter of commemorativestamps and new semi-postal30postal30 issues is properly for consideration by the Postmaster General.”31
"31For more information on commemorative postage stamps, see CRS Report RS22611, Common
Common Questions About Postage and Stamps, by [author name scrubbed].
Commemorative Coins

Commemorative coins are produced by the U.S. Mint pursuant to an act of Congress. These coins celebrate and honor American people, events, and institutions.32 The first commemorative coin was authorized in 1892 for the Columbia Exposition in Chicago.33 Since 1892, Congress has authorized 122 new commemorative coins. Between 1954 and 1981, however, Congress did not authorize any new commemorative coins.34

In 1982, Congress restarted the commemorative coin program when it authorized a commemorative half dollar to recognize George Washington's 250th Birthday.35 In 1996, additional clarifications were made in the commemorative coin program. These adjustments

placed restrictions on the number of new commemorative coin programs (two each calendar year beginning January 1, 1999) and on annual mintage levels of such programs;

required that all surcharges from numismatic operations be deposited in the Mint's Numismatic Public Enterprise Fund;

stipulated that surcharge payments are not made to the recipient organizations until (1) all operation and program costs have been recovered, and (2) the designated organization has submitted an audited financial statement that demonstrates it has raised funds from private sources that are "equal to or greater than the maximum amount the organization may receive from the proceeds" of the surcharge;

mandated an annual audit of recipient organizations; and

prohibited proceeds of any surcharge from being used to influence coin legislation.36

Committee Rules/Practice

In past Congresses, the House Committee on Financial Services has adopted a committee rule to prohibit (1) the scheduling of a subcommittee hearing on commemorative coin legislation unless it was "cosponsored by at least two-thirds of the Members of the House," or (2) reporting a "bill or measure authorizing commemorative coins which does not conform with the minting regulations under 31 U.S.C. § 5112."37 This rule was not adopted as part of the Committee rules for the 114th Congress.

In the 114th Congress, the Senate Banking, Housing, and Urban Affairs Committee rules require that a commemorative coin bill or resolution have at least 67 Senators as cosponsors before being considered by the committee.38

Outside Advice Sought by Committees

When considering commemorative coin legislation, both the House and Senate banking committees often seek advice from several different sources, but doing so is not required. Among the groups normally contacted are the Citizens Coinage Advisory Committee, the American Numismatic Association, editors of numismatic publications, the head of the Smithsonian Institution's numismatic division, renowned metallic sculptors, and numismatic artists (previous winners of design competitions).

Congressional Gold Medals
Although Congress has approved legislation stipulating requirements for numerous other awards and decorations,39 there are no permanent statutory provisions specifically relating to the creation of Congressional Gold Medals. When a Congressional Gold Medal has been deemed appropriate, , by Michelle D. Christensen.
Commemorative Coins
The guidelines for consideration of legislation authorizing commemorative coins, most of which
have been established in the 1990s, were developed in response to a perceived need to limit the
number of commemorative coin programs authorized annually, and to ensure the financial
integrity of the program.
27
U.S. Postal Service, “Shop USPS,” at https://store.usps.com/store/browse/subcategory.jsp?categoryId=
subcatS_S_NewStamps&categoryNavIds=catBuyStamps%3AsubcatS_S_NewStamps.
28
39 U.S.C. §404(a) (4-5); and CRS Report RS20221, Commemorative Postage Stamps: History, Selection Criteria,
and Revenue Potential, by Kevin R. Kosar. USPS profits when commemorative stamp buyers save, rather than use, the
stamps.
29
P.L. 111-241, 124 Stat. 2605, September 30, 2010.
30
By law, semipostal stamps (e.g., the Breast Cancer Research stamp and the Save Vanishing Species stamp) are
“issued and sold by the Postal Service, at a premium, in order to help provide funding for a cause.” 39 U.S.C.
§416(a)(1).
31
U.S. Congress, House Committee on Oversight and Government Reform, “Rules of the Committee on Oversight and
Government Reform, U.S. House of Representatives,” 114th Cong., 1st sess., p. 11, at http://oversight.house.gov/wpcontent/uploads/2015/01/OGR-COMMITTEE-RULES-114-FINAL.pdf.
Congressional Research Service
8
Commemorations in Congress: Options for Honoring Individuals, Groups, and Events
Advisory Coin Committee
In 1992, Congress created a seven-member Citizens Commemorative Coin Advisory Committee
(CCCAC) “to advise the Secretary of the Treasury and Congress on the selection of subjects and
designs for commemorative coins.” The CCCAC was specifically charged with
•
designating “annually the events, persons, or places that the Advisory Committee
recommends should be commemorated by the issuance of commemorative coins
in each of 5 calendar years succeeding the year in which such designation is
made ‘making’ recommendations with respect to the minting level for any
commemorative coin recommended”; and
•
submitting “a report to Congress containing a description of events, persons, or
places which the Committee recommends be commemorated by coin, the minting
level recommended for any such commemorative coin, and the committee’s
reasons for such recommendations.”32
In its First Annual Report to Congress in November 1994, the CCCAC concluded that, “[g]iven
the current state of the commemorative market,” the committee’s “first priority must be to restrain
the proliferation of commemorative coin programs,” while at the same time developing a program
that reflects the “noblest values and achievements of the nation.”33 The following themes were
considered inappropriate for commemoration: (1) state or regional anniversaries with little or no
national significance; (2) local institutions such as governments, universities, and public and
private schools; (3) commercial enterprises and products; and (4) organizations, individuals, and
themes principally sectarian in nature.
1993 Sense of the Congress Resolution
In the 103rd Congress (1993-1994), 14 months after Congress created the Citizens
Commemorative Coin Advisory Committee, it declared in a “Sense of Congress,”34 that the
Senate and House Banking Committees “should not report or otherwise clear for consideration ...
more than two commemorative coin programs for any year, unless the committee determines, on
the basis of a recommendation by the Citizens Commemorative Coin Advisory Committee, that
extraordinary merit exists for an additional commemorative coin program.” It was in the
“interests of all Members of Congress,” the resolution found, “that a policy be established to
control the flow of commemorative coin legislation” which had “increased at a pace beyond that
which the numismatic community can reasonably be expected to absorb.”35
1996 Statutory Restrictions
In 1996, additional clarifications were made in the commemorative coin program. These
adjustments
32
P.L. 102-390, §229, 106 Stat. 1632, October 6, 1992.
Citizens Commemorative Coin Advisory Committee, First Annual Report to Congress, November 1994, pp. 1,4.
34
P.L. 103-186, §301(b), 107 Stat. 2251, December 14, 1993.
35
Ibid., §301(a).
33
Congressional Research Service
9
Commemorations in Congress: Options for Honoring Individuals, Groups, and Events
•
placed restrictions on the number of new commemorative coin programs (two
each calendar year beginning January 1, 1999) and on annual mintage levels of
such programs;
•
required that all surcharges from numismatic operations be deposited in the
Mint’s Numismatic Public Enterprise Fund;
•
stipulated that surcharge payments are not made to the recipient organizations
until (1) all operation and program costs have been recovered, and (2) the
designated organization has submitted an audited financial statement that
demonstrates it has raised funds from private sources that are “equal to or greater
than the maximum amount the organization may receive from the proceeds” of
the surcharge;
•
mandated an annual audit of recipient organizations; and
•
prohibited proceeds of any surcharge from being used to influence coin
legislation.36
Abolition of the Citizens Commemorative Coin Advisory Committee
(CCCAC)
In 2003, Congress eliminated the CCCAC and established the Citizens Coinage Advisory
Committee (CCAC) to advise the Secretary of the Treasury on the selection of themes and
designs for coins. While broadly similar to the CCCAC in organization, the CCAC role is
narrower in that it is removed from advising (unless consulted) Congress on themes and designs
of commemorative coins prior to the enactment of commemorative coin legislation.37
Committee Rules/Practice
In past Congresses, the House Committee on Financial Services has adopted a committee rule to
prohibit (1) the scheduling of a subcommittee hearing on commemorative coin legislation unless
it was “cosponsored by at least two-thirds of the Members of the House,” or (2) reporting a “bill
or measure authorizing commemorative coins which does not conform with the minting
regulations under 31 U.S.C. § 5112.”38 This rule was not adopted as part of the Committee rules
for the 114th Congress.
In the 114th Congress, the Senate Banking, Housing, and Urban Affairs Committee rules require
that a commemorative coin bill or resolution have at least 67 Senators as cosponsors before being
considered by the committee.39
36
P.L. 104-208, 110 Stat. 3009-349-3009-351.
P.L. 108-15, §103, 117 Stat. 616, April 23. 2003.
38
U.S. Congress, House, Committee on Financial Services, Rules for the Committee on Financial Services, 113th
Cong., 1st sess. (Washington: GPO, 2013), p. 6, at http://financialservices.house.gov/uploadedfiles/113-a.pdf#page=12.
39
“Committee on Banking, Housing, and Urban Affairs,” Congressional Record, daily edition, vol. 161 (January 27,
2015), p. S539.
37
Congressional Research Service
10
Commemorations in Congress: Options for Honoring Individuals, Groups, and Events
Outside Advice Sought by Committees
When considering commemorative coin legislation, both the House and Senate banking
committees often seek advice from several different sources, but doing so is not required. Among
the groups normally contacted are the Citizens Coinage Advisory Committee, the American
Numismatic Association, editors of numismatic publications, the head of the Smithsonian
Institution’s numismatic division, renowned metallic sculptors, and numismatic artists (previous
winners of design competitions).
Congressional Gold Medals
Although Congress has approved legislation stipulating requirements for numerous other awards
and decorations,40 there are no permanent statutory provisions specifically relating to the creation
of Congressional Gold Medals. When a Congressional Gold Medal has been deemed appropriate,
Congress has, by legislative action, provided for the creation of a medal on an ad hoc basis.In the 114th114th Congress, Rule 28(a)(7) of the House Republican Conference, however, prohibits theRepublican Leader from scheduling any bill or resolution for consideration under suspension ofthe rules which directs the Secretary of the Treasury to strike a Congressional Gold Medal unless
•
the recipient is a natural person;
•
the recipient has performed an achievement that has an impact on Americanhistory and culture that is likely to be recognized as a major achievement in the
recipient’ recipient's field long after the achievement;
•
the recipient has not have received a medal previously for the same orsubstantially the same achievement;
•
the recipient is living or, if deceased, has not been deceased for less than 5 yearsor more than 25 years; and
•
the achievements were performed in the recipient’'s field of endeavor, andrepresent either a lifetime of continuous superior achievements or a singleachievement so significant that the recipient is recognized and acclaimed byothers in the same field, as evidenced by the recipient having received the highesthonors in the field.41
40The rules of the House Republican Conference also place an indirect restriction on the number ofgold medals that may be awarded annually. Rule 28(a)(7) prohibits the Republican leader fromscheduling, or requesting to have scheduled, any bill for consideration under suspension of therules which “"directs the Secretary of the Treasury to strike an additional Congressional GoldMedal in a particular calendar year if the Secretary has already been directed to strike 2 medals insuch year.”42"41 A waiver on the restriction can be granted by the majority of the elected leadership
40
See “Decorations, Medals, and Badges,” in the general index of the United States Code: 2000 Edition (Washington:
GPO, 2001).
41
U.S. Congress, House, Republican Conference, Rules of the House Republican Conference for the 114th Congress,
Rule 28(a)(7), at http://www.gop.gov/114th-rules/
42
Ibid.
Congressional Research Service
11
Commemorations in Congress: Options for Honoring Individuals, Groups, and Events
of the conference.43 of the conference.42 In addition, because the restriction only applies to bills considered undersuspension of the rules, it appears that an otherwise-prohibited bill could be brought to the floorunder an alternative procedure, such as a special rule.44
43
In the Senate, the Banking, Housing, and Urban Affairs Committee in the 114th114th Congress requiresthat at least 67 Senators must cosponsor any Congressional Gold Medal bill before beingconsidered by the committee.45
44
For more information on Congressional Gold Medals, see CRS Report RL30076, Congressional
Congressional Gold Medals, 1776-2014, by [author name scrubbed].
, by Matthew E. Glassman.
Monuments and MemorialsOn many occasions, Congress has authorized the creation of monuments and memorials tocommemorate historic figures, events, and movements. Whether the monument or memorial isintended to be built in the District of Columbia determines the process for placement, design, andapproval of the commemorative work.District of ColumbiaIn 1986, the Commemorative Works Act (CWA) was enacted to provide standards for theconsideration and placement of monuments and memorials in areas administered by the NationalPark Service (NPS) and the General Services Administration (GSA) in the District of Columbia.46
45 The CWA provides that no “"commemorative work may be established in the District of Columbiaunless specifically authorized by Congress.”47
"46Legislation proposing a new commemorative work in the District of Columbia generally consistsof three main sections: a short title, definitions, and authorization for establishing the memorial.First, most authorizing legislation has a short title. This is the name of the authorizing legislation,which often includes the name of the memorial. Second, the definitions section contains termsused in further sections of the legislation. These can include “"memorial,” “association,”
“" "association," "foundation,” or other relevant terms. Finally, the authorization generally consists of four parts:
43
For a list of elected leadership, see footnote 8.
Special rules may waive all or certain points of order against consideration of a bill. For more information, see CRS
Report 98-612, Special Rules and Options for Regulating the Amending Process, by Megan S. Lynch.
45
“Committee on Banking, Housing, and Urban Affairs Rules of Procedure,” Congressional Record, daily edition, vol.
159 (January 27, 2015), pp. S538.
46
40 U.S.C. §§8901-8909.
47
40 U.S.C. §8902(a)(2). “The term “the District of Columbia and its environs” means those lands and properties
administered by the National Park Service and the General Services Administration located in the Reserve, Area I, and
Area II as depicted on the map entitled “Commemorative Areas Washington, DC and Environs”, numbered 869/86501
B, and dated June 24, 2003.” For a map of the commemorative areas of Washington, DC and environs, see CRS Report
R41658, Commemorative Works in the District of Columbia: Background and Practice, by Jacob R. Straus. Memorials
to be located on land under the Jurisdiction of the District of Columbia are governed by D.C. Law 13-275, the
Commemorative Works on Public Space Amendment Act of 2000.
44
Congressional Research Service
12
Commemorations in Congress: Options for Honoring Individuals, Groups, and Events
" or other relevant terms. Finally, the authorization generally consists of four parts:1. Authorization to establish a commemorative work. This designates a specificthird party entity as the “"sponsor group,”" which is the party responsible for theestablishment of the new monument or memorial.2. Compliance with the Commemorative Works Act. This applies the CWA to themonument or memorial or exempts the monument and memorial from the CWAor certain CWA provisions.3. Prohibition of Federal Funds. This section generally prohibits the designatedsponsor group from using federal funds on the monument or memorial.4. Deposit of excess funds. This provision specifies the use of funds raised by thesponsor group in excess of those necessary for the design, construction, anddedication of the monument or memorial.Following introduction, CWA-related legislation is generally referred to the House Committee onNatural Resources and the Subcommittee on Public Lands and Environmental Policy, and theSenate Committee on Energy and Natural Resources. Either one or both of the committees (orsubcommittees) will hold hearings on the proposal, inviting testimony from representatives of theNational Park Service and the organization seeking approval for the monument or memorial.Important considerations will include historical importance of the commemorative work,estimated cost, and how private funds needed for construction are to be raised. Additionally, theNational Capital Memorial Advisory Commission will often provide advice to the committees onthe proposed memorial.48
47
For more information on the process after a commemorative work is authorized by Congress, seeCRS Report R41658, Commemorative Works in the District of Columbia: Background and
Practice, by Jacob R. Straus Practice, by [author name scrubbed]. For a list of commemorative works authorized since the enactmentof the CWA in 1986, see CRS Report R43743, Monuments and Memorials Authorized andCompleted Under the Commemorative Works Act in the District of Columbia, by [author name scrubbed]; , by Jacob R. Straus;
and CRS Report R43744, Monuments and Memorials Authorized Under the CommemorativeWorks Act in the District of Columbia: Current Development of In-Progress and Lapsed Works,
by Jacob R. Straus.
, by [author name scrubbed].
Non-District of ColumbiaCongressional involvement in monuments and memorials outside of the District of Columbia isnot governed by the Commemorative Works Act. Instead, the process for creating the monumentor memorial is determined based on whether the work will be placed on existing federal land.Recently, Congress has handled the creation of monuments and memorials outside the District ofColumbia in two ways: by directly authorizing a new commemorative or by making an existingcommemorative a “national” monument or memorial.49
48
40 U.S.C. §8904.
Pursuant to the Antiquities Act of 1909 (16 U.S.C. §§431-433), the president may establish national monuments on
federal lands. National monuments generally contain “historic landmarks, historic and prehistoric structures, and other
objects of historic or scientific interest.” (16 U.S.C. §3213). For more information on national monuments and the
Antiquities Act of 1909, see CRS Report R41330, National Monuments and the Antiquities Act, by Carol Hardy
Vincent and Kristina Alexander.
49
Congressional Research Service
13
Commemorations in Congress: Options for Honoring Individuals, Groups, and Events
New Commemorative
"national" monument or memorial.48
New Commemorative
Periodically, Congress authorizes a new memorial outside of the District of Columbia. On theseoccasions, legislation is required to statutorily authorize a group—either federal or non-federal—to design, construct, and maintain the memorial.For example, during the 107th107th Congress (2001-2002), legislation was enacted to authorize amemorial at the crash site in Shanksville, PA,5049 for “"a national memorial to commemorate thepassengers and crew of Flight 93 who, on September 11, 2001, courageously gave their livesthereby thwarting a planned attack on our Nation’'s Capital.”51"50 During debate on the bill (H.R. 3917H.R.
3917), Representative William Shuster summarized the importance of Congress creating anational memorial and making it part of the National Park Service.As we debate this measure, in this most revered of halls, I cannot help but contemplate thepossibility that Flight 93 was headed to a target here in the Nation’'s Capitol—quite possiblyright here to the Capitol itself. We will, however, never know for sure where that doomedflight was headed. We will never know, because men and women, put love of country aheadof self preservation. These were not super heros [sic], but individuals just like you and me.Individuals with families and loved ones anxiously awaiting their return, who put aside theirown desirers [sic] and stood up to combat terrorism and save countless lives....The legislation before us today lays out a fair and balanced approach for construction of amemorial for these brave individuals. The legislation calls for the creation of the Flight 93Advisory Commission which would be composed of representatives from the families ofvictims, the local community, the state of Pennsylvania and the United States Government.The Commission would then submit their recommendations to the Secretary of the Interior.52
51
In authorizing the Flight 93 Memorial, Congress also created an advisory committee to makerecommendations to the Secretary of the Interior and Congress on the design, construction, andmanagement of the memorial.5352 Creation of such a commission is not uncommon and can aidgovernment agencies with the planning and execution of commemorations.Official Recognition of CommemorativesInstead of authorizing the creation of a completely new memorial, Congress has also consideredlegislation to recognize existing works as national monuments or memorials. Enacting legislationto provide national recognition of a monument or memorial, but maintaining local operation andmaintenance, generally requires no federal oversight or funds. For example, P.L. 113-132designated a memorial in Riverside, CA, as the “"Distinguished Flying Cross NationalMemorial.”54 The memorial honors military aviators who have received the “Distinguished
50
P.L. 107-226, 116 Stat. 1345, September 24, 2002; 16 U.S.C. §431 note.
U.S. Congress, House Committee on Resources, Flight 93 National Memorial Act, report to accompany H.R. 3917,
107th Cong., 2nd session, July 22, 2002, H.Rept. 107-597 (Washington: GPO, 2002).
52
Rep. William Shuster, “Flight 93 National Memorial Act,” remarks in the House, Congressional Record, daily
edition, vol. 148 (July 22, 2002), p. H5005.
53
P.L. 107-226, §4.
54
P.L. 113-132, 128 Stat. 1727, July 25, 2014.
51
Congressional Research Service
14
Commemorations in Congress: Options for Honoring Individuals, Groups, and Events
"53 The memorial honors military aviators who have received the "Distinguished Flying Cross [which] is the oldest military award for aviation...”" with a national memorial, whichdoes not already exist.55
Commemorative Commissions
54
Commemorative Commissions
Commemorative commissions are entities established to oversee the commemoration of a personor event. These commissions typically coordinate celebrations, scholarly events, publicgatherings, and other activities, often to coincide with a milestone anniversary. For example, theChristopher Columbus Quincentenary Jubilee Commission was created “"to prepare acomprehensive program for commemorating the quincentennial of the voyages of discovery ofChristopher Columbus, and to plan, encourage, coordinate, and conduct observances andactivities commemorating the historic events associated with those voyages.”56
"55Bills creating commemorative commissions are introduced regularly in Congress. For example, in
the 113th the 113th Congress (2013-2014), multiple bills were introduced to establish commemorativecommissions. Most of these bills, however, are not enacted.A statute establishing a commemorative commission generally includes the commission’s
's mandate, provides a membership and appointment structure, outlines the commission’'s duties andpowers, and sets a termination date. A variety of options are available for each of theseorganizational choices, and legislators can tailor the composition, organization, and workingarrangements of a commission, based on the particular goals of Congress. As a result, theorganizational structure and powers of individual commissions are often unique.In fulfilling their duties, most commemorative commissions have encouraged, worked closelywith, and provided coordination for private groups, state and local governments, and other federalgovernment entities taking part in the general commemoration of the person or event. Because ofthese cooperative efforts, federally created commissions are often only a portion of plannedcelebratory events. Therefore, federal funds appropriated to a commemorative commission aregenerally only a portion of the total funding ultimately expended nationwide for commemorativeactivities and events.Commemorative commissions have been funded in two ways: through appropriations or throughsolicitation of nonfederal money. At times, commissions are authorized both for appropriationsand to fundraise or accept donations. In addition, some commemorative commissions are notprovided with explicit authorization to solicit funds or accept donations. Commissions withoutthe statutory authority to solicit funds or accept donations are generally prohibited from engaging
in those activities.57
55
Rep. Raúl Grijalva, “Distinguished Flying Cross National Memorial Act,” remarks in the House, Congressional
Record, daily edition, vol. 159 (October 29, 2013), p. H6853. See also, U.S. Congress, House Committee on Natural
Resources, Distinguished Flying Cross National Memorial Act, report to accompany H.R. 330, 113th Cong., 1st sess.,
May 17, 2013, H.Rept. 113-79 (Washington: GPO, 2013), p. 1.
56
P.L. 98-375, 98 Stat. 1257, August 7, 1984.
57
U.S. Government Accountability Office, Principles of Federal Appropriations Law: Third Edition, Volume II, GAO06-382SP, February 2006, pp. 6-162, http://www.gao.gov/special.pubs/d06382sp.pdf.
Congressional Research Service
15
Commemorations in Congress: Options for Honoring Individuals, Groups, and Events
in those activities.56For more information on commemorative commissions, see CRS Report R41425,Commemorative Commissions: Overview, Structure, and Funding, by [author name scrubbed] and [author name scrubbed].
, by Matthew E. Glassman and
Jacob R. Straus.
Commemorative Observances and DaysAs discussed above in the section “"House Ban on Commemorative Legislation,”," House Rule XII,clause 5 prohibits the introduction or consideration of commemorative legislation that includes a
“ "remembrance, celebration or recognition for any purpose through the designation of a specifiedperiod of time.”58"57 Additionally, House Republican Conference Rules, as well as House Oversightand Government Reform Committee rules, restrict the scheduling of such bills under suspensionof the rules in the House. Consequently, the number of commemorative observances and daysdesignated by bills, concurrent resolutions, joint resolutions, and House resolutions is small. TheHouse prohibition on commemorative observances and days, however, does not preclude theSenate from using Senate measures to honor individuals, groups, and events.In the past, the Senate Judiciary Committee has had unpublished guidelines on the considerationof commemorative legislation. These guidelines were not officially part of the committee’'s rulesand may not be currently applicable. Past guidance restricted consideration of commemorativelegislation without a minimum number of bipartisan cosponsors and prohibited commemorationof specific categories.59
Federal Holidays
58
Federal Holidays
The United States has established 11 permanent federal holidays. They are, in the order theyappear in the calendar: New Year’'s Day, Martin Luther King Jr.’'s Birthday, Inauguration Day(every four years following a presidential election), George Washington’'s Birthday, MemorialDay, Independence Day, Labor Day, Columbus Day, Veterans Day, Thanksgiving Day, andChristmas Day.6059 Although frequently called public or national days, these celebrations are onlylegally applicable to federal employees and the District of Columbia, as the states individuallydecide their own legal holidays.To create a new federal holiday, legislation is required. In recent Congresses, legislation has beenintroduced to create holidays such as “"Cesar E. Chavez Day,”61 or to formally establish Election
58
U.S. Congress, House, “Rule XII, clause 5,” Constitution, Jefferson’s Manual and Rules of the House of
Representatives of the United States One Hundred Thirteenth Congress, 113th Cong., 2nd sess., H.Doc. 113-161
(Washington: GPO, 2013), §823, pp. 620-621.
59
U.S. Congress, Senate Committee on the Judiciary, “Committee Policy for the Consideration of Commemorative
Measures: 106th Congress (unpublished).” Categories for which the committee has not considered requests for
commemorations included a commercial enterprise, industry, or specific product, or a fraternal, political, business,
labor, or sectarian organization; a particular state or any political subdivision of a state, city, town, county, school, or
institution of higher learning; or a living person.
60
5 U.S.C. §6103(a).
61
For example, see H.Res. 130 (112th Congress); H.Res. 1524 (111th Congress); H.Res. 105 (107th Congress); and
H.J.Res. 356 (103rd Congress). Each measured was referred to the committee of jurisdiction and did not receive further
attention in the House.
Congressional Research Service
16
Commemorations in Congress: Options for Honoring Individuals, Groups, and Events
Day as such.62"60 or to formally establish Election Day as such.61 Recent legislation to create a new federal holiday has suggested adding the day tothe list of holidays at 5 U.S.C. §6103.For more information on federal holidays, see CRS Report R41990, Federal Holidays: Evolutionand Current Practices, by [author name scrubbed].
Presidential Proclamations
, by Jacob R. Straus.
Presidential Proclamations
On many occasions, Congress has requested that the President issue a proclamation recognizingan event or individual. Usually associated with the creation of a patriotic and national observance,statutory language requests that the President issue a proclamation each year to commemorate anevent or group. For example, the National Pearl Harbor Remembrance Day statute requests thatthe president issue a yearly proclamation “"calling on ... the people of the United States to observeNational Pearl Harbor Remembrance Day with appropriate ceremonies and activities.... ”63
"62Commemorative proclamations can also be issued by Presidents without any congressionalaction, and have been regularly issued throughout American history. Since 1789, when PresidentGeorge Washington issued the first proclamation declaring November 26 of that year a NationalDay of Thanksgiving, there have been hundreds of such designations.Non-Legislative OptionsIn addition to the legislative options for commemoration listed above, several non-legislativeoptions exist to commemorate individuals, groups, and events. These include certificates ofrecognition, floor speeches, and the purchasing of American flags.Certificates of RecognitionCertificates of Recognition are “awards”"awards" given by individual Member offices to constituents orgroups to acknowledge accomplishments. Members are generally free to create and distributecertificates of recognition to individuals or groups to constituents.In the House, official funds can be used for the creation and distribution of certificates “in
"in connection with official and representational duties,”64"63 provided that the certificates comply withFranking Regulations and do not contain political or partisan references, solicit support of a
Member’s position on an issue, or advertise or endorse benefits not available to all constituents.65
62
For examples, see H.R. 62 (107th Congress), which would have amended Title 5, United States Code, “to establish
election day in Presidential election years as a legal public holiday....”
63
36 U.S.C. §129 (b). For example, President Barack Obama issued a National Pearl Harbor Remembrance Day
Proclamation on December 5, 2013. For text of the proclamation, see The White House, “Presidential Proclamation—
National Pearl Harbor Remembrance Day, 2013,” press release, December 5, 2013, at http://www.whitehouse.gov/thepress-office/2013/12/05/presidential-proclamation-national-pearl-harbor-remembrance-day-2013.
64
U.S. Congress, Committee on House Administration, “Certificates,” Members’ Congressional Handbook, 113th
Cong., 1st sess., December 16, 2011, at http://cha.house.gov/handbooks/members-congressional-handbook#MembersHandbook-Office-Expenses-Certificates.
65
U.S. Congress, House Commission on Congressional Mailing Standards, Regulations on the Use of the
Congressional Frank by Members of the House of Representatives, pp. 7-9.
Congressional Research Service
17
Commemorations in Congress: Options for Honoring Individuals, Groups, and Events
Member's position on an issue, or advertise or endorse benefits not available to all constituents.64Additionally, the House Ethics Manual reminds Members that all constituents are to be treatedequally, regardless of “"political support, party affiliation, or campaign contributions ...”" whendeciding to provide assistance to constituents.6665 This would likely extend to the sending ofcertificates of recognition as well.67
66
In the Senate, the Standing Orders of the Senate place restrictions on reimbursable expensespayable from a Senator’'s Official Office Account. S.Res. 294 (96th (96th Congress) and S.Res. 176
(104th (104th Congress) specifically prohibit the use of official funds for “"expenses incurred for thepurchase of holiday greeting cards, flowers, trophies, awards, and certificates”certificates" (emphasisadded).6867 Further, pursuant to 39 U.S.C. §3210(a)(3)(F), the Senate Ethics Manual providesguidance that “"[m]ail expressing congratulations to a person who achieved some publicdistinction may be franked only when the occasion involves a public distinction, rather than apersonal distinction.”69
Floor Speeches
"68
Floor Speeches
Many Members have honored individuals and groups of constituents by giving a floor speech,and then sending copies of the Congressional Record to the individual or group that was honored.This activity can include a single Member or a group of Members that want to jointly honorconstituent(s) either with a group of special order speeches or a series of individual—perhaps oneminute—speeches.7069 To inquire about floor time for a commemorative speech, Members maycontact their party’s leadership.
66
U.S. Congress, House, Committee on Standards of Official Conduct, House Ethics Manual, 110th Cong., 2nd sess.
(Washington: GPO, 2008), p. 308. See also, CRS Report RS22771, Congressional Franking Privilege: Background
and Recent Legislation, by Matthew E. Glassman.
67
Ibid., p. 160. The House Ethics Manual notes, however, that “while letters of congratulations for a public distinction
are frankable, other letters of congratulation, such as for years of service at a business, or retirement, are not. Under
House rules, a Member may use campaign funds and resources to create and send cards, letters, and certificates of these
types to constituents. However, such materials may not be produced in or sent from any House office, and may not be
produced or sent using any other House resource, including office equipment or staff while on official time.”
68
U.S. Congress, Senate Committee on Rules and Administration, “Standing Orders of the Senate: Restrictions on
Certain Expenses Payable or Reimbursable from a Senator’s Official Office Expense Account,” Senate Manual, 110th
Cong., 2nd sess., S.Doc. 110-1 (Washington: GPO, 2008), §107(2)(2), p. 107; and U.S. Congress, Senate Committee on
Rules and Administration, Senate Handbook 111th Cong., 2nd sess. (October 2010), p. I-46; IV-11.
69
U.S. Congress, Senate Select Committee on Ethics, Senate Ethics Manual, 108th Cong., 1st sess., S. Pub. 108-1
(Washington: GPO, 2003), p. 164. Examples of public distinctions include recent naturalization as an American citizen;
receipt of a high school diploma by a senior citizen through an adult education program; enlistment or re-enlistment in
the Armed Forces; becoming an Eagle Scout or a VFW Commander or an American Legion State Commander; being
elected to a public office; becoming director of a state museum; being commissioned upon graduation from one of the
U.S. Service Academies; being the recipient of a Harry S. Truman Scholarship or a Robert Byrd honor scholarship; or
receiving the ‘‘Employer of the Year’’ Award presented by the President’s Committee on Employment of the
Handicapped.
70
For an example in 2015, an honorific speech was given to celebrate the 129th annual groundhog day in
Punxsutawney, PA. See http://www.gpo.gov/fdsys/pkg/CREC-2015-02-03/pdf/CREC-2015-02-03-pt1-PgH710-9.pdf.
Congressional Research Service
18
Commemorations in Congress: Options for Honoring Individuals, Groups, and Events
Flags
In 1937, a Member of Congress made the first request to fly a flag over the United States Capitol
building. Since that time, the Architect of the Capitol (AOC) has managed the flag program for
the House and Senate.
Generally, flags flown over the Capitol can be purchased by a constituent through his or her
Representative’s or Senator’s offices. In both the House and Senate, the Member office collects
flag requests from constituents and facilitates the purchase of flags from the House or Senate
office supply store and coordinates with the Architect of the Capitol for the flying of flags over
the Capitol building.
For more information on the Architect of the Capitol’s flag program, see http://www.aoc.gov/
trades-and-areas-practice/capitol-flag-program.
House of Representatives
Members may obtain flags from the Office Supply Service (OSS). “Initially, the costs of the flags
will be charged to the [Member Representational Allowance] MRA. “Once payment for a flag is
received by the Member office, the office may submit the check to OSS. OSS will credit the
MRA. If a request is made to have a U.S. flag flown over the Capitol, an additional flag flying fee
must be paid by the individual purchasing the flag.”71 Additionally, Members may use official
funds to pay for a flag flown over the Capitol that will be used for an official gift.72
For more information on the House of Representatives flag program, see
https://housenet.house.gov/serving-constituents/flags/flag-faqs.
Senate
Senators may obtain flags from the Senate Stationary Room. Senators collect the cost of the flag,
shipping fees, and flag flying and certification fees from the constituent, obtain the flag from the
stationary room, and then work with the Packaging and Flags division of the Printing, Graphics,
and Direct Mail (PG&DM) office to arrange for the flag to be flown over the Capitol.73
Additionally, pursuant to S.Res. 294 (96th Congress), “Senate offices can use official funds to
purchase flags. The legislation limits the groups to which a gift of a flag may be made to public
organizations only, such as churches, schools, and patriotic service groups.”74
71
U.S. Congress, Committee on House Administration, “Flags,” Members’ Congressional Handbook, 114th Cong., 1st
sess., December 16, 2011, at http://cha.house.gov/handbooks/members-congressional-handbook#Members-HandbookOffice-Expenses-Flags. For more information on the Member Representational Allowance (MRA), see CRS Report
R40962, Members’ Representational Allowance: History and Usage, by Ida A. Brudnick.
72
Ibid., at http://cha.house.gov/handbooks/members-congressional-handbook#Members-Handbook-Office-ExpensesGifts.
73
U.S. Congress, Senate, Committee on Rules and Administration, Senate Handbook, 111th Cong., 2nd sess., October
2010, pp. I-42-I-43.
74
Ibid., p. I-44. S.Res. 294 (96th Congress) was amended by S.Res. 176 (104th Congress). Further, “the legislative
history of S.Res. 294 limits the groups to which a gift of a flag may be made to public organizations only, such as
churches, schools, and patriotic service groups.” For more information see, U.S. Congress, Senate, Select Committee
on Ethics, Senate Ethics Manual. 108th Cong., 1st sess., S.Pub. 108-1 (2003), p. 173, at http://www.ethics.senate.gov/
(continued...)
Congressional Research Service
19
Commemorations in Congress: Options for Honoring Individuals, Groups, and Events
For more information on the Senate flag program, see http://webster.senate.gov/pdgm/flagpackaging-services.
Author Contact Information
Jacob R. Straus, Coordinator
Analyst on the Congress
jstraus@crs.loc.gov, 7-6438
Matthew E. Glassman
Analyst on the Congress
mglassman@crs.loc.gov, 7-3467
Michelle D. Christensen
Analyst in Government Organization and
Management
mchristensen@crs.loc.gov, 7-0764
Garrett Hatch
Specialist in American National Government
ghatch@crs.loc.gov, 7-7822
Craig K. Elwell
Specialist in Macroeconomic Policy
celwell@crs.loc.gov, 7-7757
Valerie Heitshusen
Analyst on Congress and the Legislative Process
vheitshusen@crs.loc.gov, 7-8635
Key Policy Staff
Area of Expertise
Name
Phone
Email
Monuments and memorials
Commemorative commissions
Commemorative observances
Federal holidays
Certificates of recognition
Floor speeches
Flags
Jacob R. Straus
7-6438
jstraus@crs.loc.gov
Naming post offices
Postage stamps
Michelle D. Christensen
7-0764
mchristensen@crs.loc.gov
Commemorative coins
Craig Elwell
7-7757
celwell@crs.loc.gov
Congressional Gold Medals
Commemorative commissions
Matthew E. Glassman
7-3467
mglassman@crs.loc.gov
Naming federal buildings
Garrett Hatch
7-7822
ghatch@crs.loc.gov
House and Senate rules
Floor procedure
Valerie Heitshusen
7-8635
vheitshusen@crs.loc.gov
(...continued)
public/index.cfm/files/serve?File_id=f2eb14e3-1123-48eb-9334-8c4717102a6e.
Congressional Research Service
20
's leadership.
Flags

In 1937, a Member of Congress made the first request to fly a flag over the United States Capitol building. Since that time, the Architect of the Capitol (AOC) has managed the flag program for the House and Senate.

Generally, flags flown over the Capitol can be purchased by a constituent through his or her Representative's or Senator's offices. In both the House and Senate, the Member office collects flag requests from constituents and facilitates the purchase of flags from the House or Senate office supply store and coordinates with the Architect of the Capitol for the flying of flags over the Capitol building.

Members may obtain flags from the Office Supply Service (OSS). "Initially, the costs of the flags will be charged to the [Member Representational Allowance] MRA. "Once payment for a flag is received by the Member office, the office may submit the check to OSS. OSS will credit the MRA. If a request is made to have a U.S. flag flown over the Capitol, an additional flag flying fee must be paid by the individual purchasing the flag."70 Additionally, Members may use official funds to pay for a flag flown over the Capitol that will be used for an official gift.71

Senators may obtain flags from the Senate Stationary Room. Senators collect the cost of the flag, shipping fees, and flag flying and certification fees from the constituent, obtain the flag from the stationary room, and then work with the Packaging and Flags division of the Printing, Graphics, and Direct Mail (PG&DM) office to arrange for the flag to be flown over the Capitol.72 Additionally, pursuant to S.Res. 294 (96th Congress), "Senate offices can use official funds to purchase flags. The legislation limits the groups to which a gift of a flag may be made to public organizations only, such as churches, schools, and patriotic service groups."73

"Commission on National Observances and Holidays," Congressional Record, vol. 112, part 18 (October 3, 1966), p. 24828. The commission would not have been allowed to make recommendations calling for a national observance for any fraternal, political, or religious organization, or a commercial enterprise or product.

U.S. Congress, House Republican Conference, "Conference Rules." Pursuant to Rule 28(b), "a waiver of this rule can be granted by the majority of the Elected Leadership as defined under [Republican Conference] Rule 2." The elected leadership of the Republican Conference is defined in Rule 2(a) of the Conference Rules to include the Speaker of the House, the Republican Leader, the Republican Whip, the Chair of the Republican Conference, the Chair of the National Republican Congressional Committee, the Chair of the Committee on Policy, the Vice-Chair of the Republican Conference, and the Secretary of the Republican Conference. A copy of the House Republican Conference Rules can be found at http://www.gop.gov/114th-rules/.

Post office naming statutes also include a "references" provision. The practical effect of this provision is that it informs agencies that they need not amend or replace existing documentation that refers to the designated post office by another name. Thus, for example, the U.S. Postal Service would not need to change its internal documents to reflect the post office's renaming.

U.S. Congress, House Committee on Transportation and Infrastructure, Subcommittee on Public Buildings and Economic Development, The Naming of Public Buildings, internal committee memorandum dated July 16, 1995. This memorandum identified criteria for the subcommittee to consider in naming a public building. These criteria were that: the building must be under the control of the General Services Administration (GSA) or the Architect of the Capitol (leased buildings are normally not named unless the building is under a lease purchase authority); the building must not currently be named for an individual; subcommittee consideration does not occur unless the Member in whose district the building is located sponsors the legislation or otherwise consents to the naming; age requirements are not applicable; priority is not given to any particular class or occupation of individuals; the subcommittee generally does not name buildings for sitting Members of Congress; and the person for whom the building is named must have a "good reputation."

By law, semipostal stamps (e.g., the Breast Cancer Research stamp and the Save Vanishing Species stamp) are "issued and sold by the Postal Service, at a premium, in order to help provide funding for a cause." 39 U.S.C. §416(a)(1). For more information on semipostal stamps, see United States Postal Service, "Fundraising Stamps (Semipostal Stamp Program)," at https://about.usps.com/corporate-social-responsibility/semipostals.htm.

40 U.S.C. §8902(a)(2). "The term "the District of Columbia and its environs" means those lands and properties administered by the National Park Service and the General Services Administration located in the Reserve, Area I, and Area II as depicted on the map entitled "Commemorative Areas Washington, DC and Environs", numbered 869/86501 B, and dated June 24, 2003." For a map of the commemorative areas of Washington, DC and environs, see CRS Report R41658, Commemorative Works in the District of Columbia: Background and Practice, by [author name scrubbed]. Memorials to be located on land under the Jurisdiction of the District of Columbia are governed by D.C. Law 13-275, the Commemorative Works on Public Space Amendment Act of 2000.

Pursuant to the Antiquities Act of 1909 (16 U.S.C. §§431-433), the president may establish national monuments on federal lands. National monuments generally contain "historic landmarks, historic and prehistoric structures, and other objects of historic or scientific interest." (16 U.S.C. §3213). For more information on national monuments and the Antiquities Act of 1909, see CRS Report R41330, National Monuments and the Antiquities Act, by [author name scrubbed].

U.S. Congress, Senate Committee on the Judiciary, "Committee Policy for the Consideration of Commemorative Measures: 106th Congress (unpublished)." Categories for which the committee has not considered requests for commemorations included a commercial enterprise, industry, or specific product, or a fraternal, political, business, labor, or sectarian organization; a particular state or any political subdivision of a state, city, town, county, school, or institution of higher learning; or a living person.

For example, see H.Res. 130 (112th Congress); H.Res. 1524 (111th Congress); H.Res. 105 (107th Congress); and H.J.Res. 356 (103rd Congress). Each measured was referred to the committee of jurisdiction and did not receive further attention in the House.

Ibid., p. 160. The House Ethics Manual notes, however, that "while letters of congratulations for a public distinction are frankable, other letters of congratulation, such as for years of service at a business, or retirement, are not. Under House rules, a Member may use campaign funds and resources to create and send cards, letters, and certificates of these types to constituents. However, such materials may not be produced in or sent from any House office, and may not be produced or sent using any other House resource, including office equipment or staff while on official time."

U.S. Congress, Senate Select Committee on Ethics, Senate Ethics Manual, 108th Cong., 1st sess., S. Pub. 108-1 (Washington: GPO, 2003), p. 164. Examples of public distinctions include recent naturalization as an American citizen; receipt of a high school diploma by a senior citizen through an adult education program; enlistment or re-enlistment in the Armed Forces; becoming an Eagle Scout or a VFW Commander or an American Legion State Commander; being elected to a public office; becoming director of a state museum; being commissioned upon graduation from one of the U.S. Service Academies; being the recipient of a Harry S. Truman Scholarship or a Robert Byrd honor scholarship; or receiving the ''Employer of the Year'' Award presented by the President's Committee on Employment of the Handicapped.